Embodiments of the present invention provide a congestion control method, a device, and a system. In the embodiments of the present invention, because a gateway device, unlike a gateway device that performs congestion control on all user equipments by using a same control policy in the prior art, performs congestion control on a user equipment according to a real-time location of the user equipment and a real-time congestion situation of a location region in which the user equipment is camping, thereby improving flexibility and accuracy of congestion control.